Is there a constructive way to say, "If you don't raise pay, other efforts to recruit and retain are just wasted?" I work for a government agency that serves low-income clients.

Is there a constructive way to say, "If you don't raise pay, other efforts to recruit and retain are just wasted?" I work for a government agency that serves low-income clients. Our senior leaders and Governor do not value those clients, and therefore, do not value our agency. If they weren't legally required to provide services, I doubt they would. Our starting pay is 25%-30% below what the candidates we seek could make in the private sector. Existing staff salaries are similarly low, and raises don't match inflation. Our current attrition rate for new hires means that 40%-50% of any new cohort will leave within the first 12 months of employment. We have about 20% annual turnover of other staff. Pay is listed as the primary reason for leaving by both groups. HR has tasked every department with coming up with an action plan to improve recruitment and retention. The general consensus among the rank and file is that any efforts on our part are wasted until that issue is addressed. There are no current plans to make significant improvements to the pay structure. Also, any efforts on our part will add to the workload of already understaffed teams, and of course, for no extra compensation. Any wisdom on how to approach this in a constructive way?